CHAPTER V
SADAT'S EGYPT AND NON-ALIGNED MOVEMENT
CHAPTER V
SADAT'S EGYPT AND NON-ALIGNED MOVEMENT
The steady graph of Nasser,l!e foreign policy witnessed sharp crests and
falls under President Sadat. Exhibiting seemingly similar policies of Nasser, as
pursued by him during 1967 to 1970, Sadat initially stepped into the foot-prints of
his predecessor and achieved the zenith also. But soon he deviated from that
path and began to manoeuvre some elusive efforts to rebuild Egypt in his own
way. He restructured Egypt basing upon three major parameters such as regime
legitimacy, domestic compulsion (both economic and military) and international
option. Egyptian foreign policy objectives, basing upon these three parameters
as articulated and acted upon by Sadat, underwent a fundamental change from
that of Nasser. The tangibly defined and definitely pronounced goals of Nasserite
foreign policy got a severe set-back under Sadat. It had also a profound impact
upon the non-aligned image of Egypt which can be gauged from three broad
phases:
(a) Pre-1973/197 4 period,
(b) 1974 to 1978/1979 period, and
(c) post-1979 period.
Egypt, during Nasser era, was one of the pioneers of the Non-Aligned
Movement (NAM) and helped to establish the politico-juridical structure of nonalignment in Cairo from 5 to 12 June 1961. The world is indebted to Nasser,
Nehru, Nkrumah, Sukarno and Tito, the protagonists of a movement which has
become a vital factor in world development. The messages of the pioneers of the
•135
movement as laid down by the Belgrade Non-Aligned Summit of 1961 and
expanded by the subsequent summits is still alive and vivid. The movement is
still concerned with issues of peace, alleviation of international tension and
economic development of its peoples. Its principal effort was, and still remains
today, the non-conciliatory and forceful struggle against colonialism, imperialism,
Zionism and racial discrimination, the scourges from which millions continue to
suffer. Over the years, despite many obstacles, the movement and the policy of
non-alignment have achieved significant successes.
. The seventies witnessed a number of changes in Egypt's foreign policy as
well as in international field. While the Egypt-USSR Friendship Treaty of 1971,
October War of 1973, breakdown of Egypt-USSR Friendship Treaty in 1976,
Sadat's Jerusalem visit of 1977, Camp David Talks of 1978 leading to a Peace
Treaty in 1979 were some of the important events in Egypt's foreign policy. The
detente politics, oil embargo, increase in number of non-aligned countries and
holding of NAM Summits in 1973, 1976, 1979 were other notable features at
international level.
While the changes in Egypt's foreign policy predominantly
influenced Sadat's version of non-alignment, the global changes moulded Sadat's
actions in the NAM.
The Cold War between the two power blocs had turned into detente in the
seventies.
This called for a change in approach on the part of non-aligned
countries, particularly that dangers increased, as attempts were made to convince
them that their movement had lost its raison d'etre with the end of the Cold War
and the dawn of world detente and accordingly, the mission of non-alignment had
136
been accomplished. But world realities contradicted that argument, and indicated
the need to uphold non-alignment; challenges had changed only in form.
1
The non-aligned countries were beset by an acute economic crisis due to
the rising price of petroleum and the growing arms-trade as a result of increasing
military confrontation.
This situation put the economic factor in the forefront
superseding all others within the NAM. With a change in priorities, new countries
gained prominence, especially those whose economic potentials enabled them to
help solve the problems of the group.
The seventies also saw the increase in the number of the non-aligned
countries.
They numbered twenty-five at the Belgrade NAM Summit of 1961,
forty-seven at the Cairo NAM Summit of 1964, fifty-four at the Lusaka NAM
Summit of 1970, seventy-five at the Algiers NAM Summit of 1973, Eighty-six at
the Colombo NAM Summit of 1976 and Ninety-two at the Havana NAM Summit
of1979. 2
Most of the Third World countries had joined the non-aligned group. This
increase in number led to the disappearance of the pioneering leadership. Nonalignment moved from individual initiatives to group action. A group approach and
method had to necessarily differ from those followed by its pioneering leadership.
1
Egypt and Non-Alignment, Cairo: State
Arab Republic of Egypt,
Information Service, ai-Ahram, n.d., [hereafter Egypt Govt. Document II],
pp.12-13.
2
The Policy and Movement of Non-alignment, 1961-1979: A Survey of
Participants and Activities, Beograd, 1979, pp.29-48; Also, Addresses
Delivered at the Sixth Conference of Heads of State or Government of
Non-Aligned Countries, Havana, 3-9 September 1979, [hereafter NA.M
Documents, 1971-79], p.881.
137
Consequently, Egypt's role in the seventies was that of cooperation within the
movement and consolidation of non-alignment. 3
During Sadat's period three non-aligned Summits were convened under
group leadership which were instrumental in preventing the collapse of the
movement. The problems which the non-aligned group were facing reached the
extent of wars between members of the group as well as acute political struggles;
a situation which had not existed before. Indeed, the survival of non-alignment
was, in itself, a tremendous achievement. The policy of Egypt during that stage
mainly took the form of cooperation with the countries of the group, and
consultation at bilateral level to workout means whereby to secure the survival of
the movement, and find solutions to the group's problems. 4 It should be noted
that the Sadatian Egypt, in spite of all odds, could be able to participate actively
in the three non-aligned Summits and other conferences held during his time and
could be able to redefine the goals of the movement.
In fact, Sadat's Egypt
reaffirmed the earlier defined five main components of non-alignment such as:
( 1)
an independent policy based on peaceful co-existence;
(2)
support for the national liberation movements;
(3)
the refusal to subscribe to collective military alliances that include a superpower;
(4)
the refusal to sign bilateral military alliances that include a Super Power;
and
3
4
Egypt Govt. Document II, p.13
ibid.
138
(S)
the refusal to grant military bases to a Big Power.
5
These five principles have been the golden rules of NAM which have guided
Egypt's actions right from the Belgrade Summit of 1961.
The Fourth non-aligned Summit and the first in the Sadat period was held
at Algiers, the capital city of Algeria, from 5-9 September 1973.
6
Sad at attended
this conference and along with other participants noted that over half the countries
of the world, representing the majority of the world population, attended this
conference. The number and level of participants and the general tenor of the
meeting are an indicator of the vitality and dynamism of non-alignment. Sadat
said:
''The pioneers of non-alignment were a select few, but now they represent
the majority of the world citizenry". 7 Sadat emphasized upon political freedom
as a startoff to economic and social liberation. The political liberation only could
lead to the control of one's economic resources by a free country. He also made
it clear not to let the non-aligned nations be used as a fuel for war; their land as
an arena for battles; and their countries as military bases. He claimed that the
policy of non-alignment had not lost its importance in the era of detente. Rather
in the light of the prevailing detente, it was imperative for the non-aligned nations
5
Addresses delivered at the Sixth Conference of Heads of State or
Government of Non-Aligned Countries, Havana, 3-9 September 1979,
[hereafter Addresses, Sixth NAM Summit] p.186.
6
NAM Documents, 1961-82, p.108.
7
Address to the Conference of Non-Aligned Countries in Algiers by Sadat,
Radio Cairo, 6 September 1973, quoted in Raphellsraeli, The Public Diary
of President Sadat, Part One, The Road to War, Leiden: E.J.Brill, 1978.
p.420.
139
to act together to bring about peace with justice.
The justice, which Sadat
emphasized, must be political, so that no more aggression, domination or
imperialism would exist; social, so that racism and discrimination would be
eliminated; and economic, so that no longer there would be robbery, monopoly
and exploitation. To corroborate such a foundation Sadat added:
(1)
We must coordinate our thought, act in unison and take the appropriate
steps which could serve the cause of international justice as it relates to specific
problems.... We believe that our joint stand carries a weight in the international
community.
(2)
We must act so that the non-aligned may enforce respect for law and for
United Nations principles and objectives. We have to begin from reinforcing the
self-reliant forces of each of us, to the best of each one's ability, while building up
solidarity in our defenses. Thus, we could resist anyone who wishes to exploit
our resources or monopolize our means of defense .... Any aggression on a
member state of the NAM, must be considered as harmful to the security of the
rest. We must withstand this aggression and take joint measures against it, in
terms of extending aid to the victim. In the final analysis, an aggression which
begins against one member-state, is actually directed against all of us.
(3)
Politics of detente will, by necessity, take many problems out of United
Nations jurisdiction. Therefore, the non-aligned nations must strengthen United
Nations role and effectiveness in resolving international conflicts. This obligates
us to execute the decisions of the international body and all the clauses of its
charter, including sanctions, when the United Nations fails to avert aggression by
140
other means. 8 Sadat reiterated that the political and economic struggles were
interwoven and complementary of each other. The Middle East, placed at the
heart of the non-aligned world, is engaged in an awesome struggle which
provides a living example of the provocations launched against the non-aligned
policies. This struggle shall determine in the long run not only the future of this
region but also the future of the unity of non-aligned nations.
He continued
emphatically in the Algiers conference:
We brought here our marked confidence in the prospects of a
broadening front within the non-aligned world, which aligns itself with
our problems - its problems ... We want to achieve peace (salaam)
with justice in our region as well as progress and prosperity so that
we could partake of the peace and prosperity of the non-aligned
countries and the whole world. Peace, however, can be achieved
only contingent upon a full withdrawal of the Israeli forces of
aggression from all Arab territories, and upon safeguarding the
legitimate rights of the Palestinian people, who have been insisting
on their right to self-determination. We believe that our non-aligned
countries shall not only condemn Israeli and Zionist policies as well
as those who support those policies, but that our resolutions can
effect the transition from talks to deeds ....
'What the American press has been terming a war to conq!Jer the
desert' is nothing but a scheme to control the resources of
developing countries, amounting to a sheer revival of colonialism.
Thus, we believe that our non-aligned countries shall not only
condemn Israeli and Zionist policies as well as those who support
these policies, but that our resolutions can effect the transition from
talks to deeds. 9
Egypt had striven hard during the First and Second non-aligned Summits,
in Belgrade and Cairo respectively, to attain peace and prosperity for all people,
by means of reconfirming the principles of peaceful co-existence and acting
8
Address to the Conference of the Non-Aligned Countries on Algiers, Radio
Cairo, 6 September 1973, quoted in Raphe I Israeli, n. 7, pp.422-23.
9
Ibid, pp.420-24.
141
towards a constructive international cooperation between members of the world
community. Following the Third Summit at Lusaka, and the joint evaluation of the
international situation, Egypt had continued to act so as to spare the world the
horrors of war and to relax international tensions which was caused both inside
and outside the United Nations. It should be noted that the United States had
cast her veto for the fifth time in the Security Council in July 1973 reconvened to
vote on the non-aligned draft resolution regarding the Arab-Israeli issue. Out of
15 members who attended this meeting of the Security Council14 had expressly
condemned Israeli imperialism and the policy of Zionism but unfortunately it
succumbed to the U.S. veto. 10 It is pertinent to note here that it was the time
when Egypt was still depending on USSR both economically and militarily in its
foreign policy option and the October War- the turning point- was yet to come.
Thus, the Egyptian antagonism towards the United States was overt.
The Fourth non-aligned Summit was held under the shadow of shifting
international environment.
Sadat, along with other Heads of States and
Government of the non-aligned countries, noted with satisfaction that the
development of international relations had confirmed the vitality and lasting value
of the aims, principles and practice of the policy of non-alignment.
The
participants also noted that peace was not even close to being a certainty in ail
parts of the world as particularly in Middle East, Cambodia, Africa where there
has been a new outbreak of colonial wars of extermination and aggression
against independent states; and in Latin America, where the colonial situation still
10
Israeli Raphe!, n.7, pp.414-24.
142
exists and where imperialism conspires against the sovereignty and security of
states. The participants reaffirmed the determination of the non-aligned countries
to strictly observe the principles of sovereign equality and territorial integrity of all
states; to refrain from the threat or use of force, and to settle their disputes by
peaceful means, in accordance with the principles of the United Nations
Charter. 11
The situation in the Middle East continues to give cause for great concern.
Israel's obstinacy in pursuing the policy of aggression, expansion and annexation,
as well as the Israeli policy of oppressing the inhabitants of the territories which
they have occupied by force, are a challenge to the international community, to
the United Nations and to the universal declaration on human rights and are a
threat to international peace and security. Calling attention to the inadmissibility
of the forcible annexation of territories the conference called upon Israel to
withdraw from all occupied territories forthwith and unconditionally, and to
undertake the obligation to aid Egypt, Syria and Jordan with all means in the
liberation of their occupied territories. 12
Egypt, along with other non-aligned countries, held that the restoration of
the national right to the Palestinian people is a fundamental pre-condition for the
establishment of an equal and lasting peace in this area. The struggle of the
Palestinian people to recover their homeland which was taken from them is an
integral part of the struggle of all nations against colonialism. The non-aligned
11
NAM Documents, 1961-82, p.94.
12
ibid, p.94.
143
countries were highly alarmed because of Israel's policy of aggression and
expansion, which represents, in fact, a severe assault against the sovereignty of
the Arab people and a threat to their security and territorial integrity. Egypt, in the
non-aligned group of countries, considered that Israel's policy of aggression and
occupation of Arab territories deprives the countries in those regions of their right
to exercise sovereignty over their natural resources, which is at variance with the
aims of the non-aligned countries and the strategy of development of the United
Nations and the resolutions of the United Nations confirming the right of states to
exercise sovereignty over the natural resources located in all their territories.
Egypt, along with others, condemned Israel for having resorted since its
inception to methods of the most brutal oppression and terrorism. The resolutions
passed in the conference underlined that the military, economic, political and
moral support of some Western powers, the USA in particular, has enabled Israel
to pursue its policy of aggression and to prolong its occupation of Arab territories.
Moreover, they (1) demanded that Israeli forces withdraw at once and
unconditionally from all the Arab territories which they occupied after June 1967
War, (2) reaffirmed the full and effective support for Egypt, Syria and Jordan in
their struggle for recovering their occupied territories with all means, (3)
condemned the violation of human rights by Israel in the occupieaArab territories,
and its refusal to apply the Geneva Convention of 1949 on the protection of the
civilian population in war time, (4) denounced Israel's policy bent on altering the
nature of the occupied territories and considered that such actions represent war
144
crimes and a challenge to humanity, as stated in a resolution of the 28th meeting
of the Human Rights Commission. 13
The non-aligned group, in which Egypt was an active participant, also noted
with concern that the struggle of the Palestinian people to recover their usurped
homeland was an integral part of the struggle of all peoples for self-determination,
and against colonialism and racial discrimination. 14
The resolutions of the
conference contained the direct denunciation of Zionism as a form of racism and
the Declaration on the struggle for national liberation which read: "Having
exhausted all peaceful means, and faced with the tenacity of the colonial powers
and the collaboration of their protectors, including members of NATO, the
oppressed nations have no resource other than armed struggle as a way of
eliciting respect for their right to self-determination and independence. 15
In an answer to the clarion call given by President Boumedienne of Algeria
regarding the total liberation of Africa Egypt, along with other Arab states, said
that there must be quid pro quo in the NAM: if they are asked to increase their
material aid to African independence movements, the Africans, in return, must
support Arab positions on the Middle East. 16 Thus, the non-aligned Summit of
13
ibid, pp.110-11.
14
K.PSauvant and Odette Jankowitsch, The Third World without Superpowers: The collected Documents of the Non-Aligned Countries, vo/.1,
Dobbs Ferry, New York: Oceana Publications Inc., 1978, pp.195-96.
15
Two Decades of Non-alignment, Documents of the Gatherings of the Nonaligned Countries,
1961-1982, Delhi,
1983, p.94, quoted 1n
V Benevolensky, The Non-aligned Movement from Belgrade to Delhi,
Moscow: Progress Publications, 1985, p.46.
16
Guardian, 6 September 1973.
145
Algiers of 1973 marked the active support of Egypt in a group sphere where the
major issues were discussed. Egypt's role in this Summit needs to be noted in
the light of Egypt's attitude towards the West during this time.
In fact, till this
time, Egypt maintained the same old tempo as was witnessed in Nasserite era.
The Fourth non-aligned Summit was succeeded by several other non-aligned
conferences like the Lima conference which was held on 24 August 1975. This
was a conference of foreign ministers/ambassadors of some non-aligned countries
and was called to take a decision whether or not to move for Israel's suspension
at the scheduled U.N. General Assembly meeting.
Key delegations at the
conference were privately seeking to reconcile the division between the Arab
hard-liners who wanted a strong stand against Israel, not excluding its expulsion
from the UN to be adopted and those wanting a mild stand. Egypt and Saudi
Arabia appeared to have preferred a moderate approach in view of the US
Secretary of State, Dr. Kissinger's shuttle diplomacy to bring about an interim
agreement on lsrael. 17 This stand of Egypt should also be noted in the light of
Egypt's new economic and military relationship with USA The draft resolution,
which was adopted at Lima conference, was based on a draft resolution fairly
close to the one adopted with the backing of Egypt and the majority of African
countries at the meeting of the Organisation of African Unity (OAU) at Kampala
in July 1975.
17
It called for continued pressure on Israel to implement UN
The Hindustan Times, 29 August 1975.
146
resolutions, but made no reference to "expulsion" or suspension of Israel from the
world organisation. 18
The Lima Conference and other conferences maintained the non-aligned
tempo which even got reflected in several statements of representatives of some
non-aligned states.
Mr.Mohammed Atef El Nawawi, Ambassador for the Arab
Republic of Egypt in Sri Lanka, in February 1976, in a lecture on "Egypt's Foreign
Policy" that was sponsored by the Sri Lanka Foreign Correspondents' Association
at the Conference room of the Hotel Taprobane, said:
In the present international climate the most 'lethal danger'
threatening an independent nation was to fall within spheres of
influence. To avoid that was the main principle of Egyptian policy
of non-alignment. Since 1973 the Arab world had become a
powerful group speaking for itself. The non-aligned countries had
stood by Egypt and the Arab world and foremost among them in
severing relations with Israel was Sri Lanka. "19
Egypt took a lead in maintaining the non-aligned spirit when Cairo became a
venue for a special meeting of Arab countries, held in April 1976, in which the
main issues to be taken up in the forthcoming Colombo NAM Summit of 1976
were discussed_2°
The Fifth non-aligned Summit at Colombo held from 16-19 August 1976
emphasised the significance of an international information order in the fields of
information and mass communication which was as vital as a new international
18
The Hindustan Times, 30 August 1975.
19
Ceylon Daily News, 12 February 1976.
20
Ceylon Daily News, 27 April 1976.
147
economic order. 21 Whether the participants in the Colombo Summit gave a new
direction to the NAM or not, there could be no question about the need for it. The
anti-imperialistic slogans themselves no longer served the interests of most of the
member countries, much less of the Third World as a whole.
For instance,
instead of continuing to denounce the United States for its support to Israel,
Egypt, the country directly and in a sense most adversely affected, had come to
depend on US goodwill to arrange for an honourable settlement with Israel. But
this change in stand of Egypt should be analysed in the light of Egypt's domestic
compulsion of economic and military needs.
Thus, the main problem the non-aligned countries were facing was the
economic issue, as Mrs. Bandarnaike, the then Prime Minister of Sri Lanka, had
rightly pointed out. She said,
their solution calls for cooperation with, rather than antagonism,
towards the West. For, apart from the oil-rich countries of the Gulf
like Saudi Arabia, Iran, Kuwait and the United Arab Emirates, it
alone has the capacity, if it so wish~s. to help the third world in a
big way. The Soviet bloc of countries just do not have either the
necessary resources or the institutional infrastructure in the shape
of organisations like the World Bank to assist the developing nations
as a whole on a significant scale. 22
The inclination of Sadat's Egypt towards USA corroborated this fact and this trend
had led Sadat to annul the Egypt-USSR Friendship Treaty in 1976.
Colombo, the majestic port city of the Indian Ocean which is known as the
Pearl of the Orient, was bedecked with flags and slogans of solidarity on 15
21
Bimal Prasad, "The Evolution of Non-Alignment", in Uma Vasudev (ed.),
Issues Before Non-Alignment: Past and Future, New Delhi: Indian Council
of World Affairs, Sapru House, 1983, p.45.
22
Times of India (Delhi), 11 August 1976.
148
August 1976. The Heads of State and Government of 86 non-aligned countries
representing more than half of the member states of the international community
embracing the majority of the world's population had assembled to discuss vital
political and economic questions. From Belgrade through Cairo, Lusaka, Algiers
and now Colombo, the NAM had expanded in membership, content and
significance. The Arab nations have been an integral part of the movement from
its inception and its role has grown in impact as the movement has matured from
a once almost laudable voice of a small group of developing nations to the
authoritative command of the Third World. A founder member of the NAM, Egypt,
has throughout been in the forefront of the activities of the movement together
with others. Hence it shared the credit for the achievements of the movement so
far. 23
In this Fifth NAM Summit, President Sadat criticised the "big power
interference" in the internal affairs of non-aligned countries. 24
Egypt's crucial
role in this NAM Summit could be gauged from the importance given to President
Sadat as one of the regional leaders along with India's Premier, Mrs.lndira
Gandhi, Premier Burnhein of Guyana and Archbishop Makarios of Cyprus who
spoke for Asia.
The agenda of the conference and its office bearers, already
processed in two stages by the officials - Co-ordinating Committee and the
Foreign Ministers' Bureau - were adopted in a matter of minutes. Among the
23
Ceylon Daily News, 3 August 1976.
24
Statesman (Delhi), 17 August 1976.
149
eighteen Vice-P-residents elected, Sadat was chosen to hold a position from
Asia 25
Sadat, in his address to the conference on 16 August 1976, predicated
some
general
concepts
which
might
guide
the
non-aligned
countries
commensurate with their unshakable faith in the principles of non-alignment. He
said:
( 1)
In the past, we had defined non-aligned as an abstention
from joining international blocs, and as a positive partaking of
international politics, without aligning with any particular bloc of
power; this definition is now deficient and no longer serves the
purposes of the last quarter of the twentieth century. Non-alignment
should be expanded to include freedom of choice and freedom of
will, independent of the pressures exerted by the powers, be they
political, economic or otherwise. Along these lines Egypt has
scored her achievements against racist colonialism and imperialism,
by virtue of insistence on her free will and freedom of decision.
(2)
As a group on the international scene, we ought to take the
initiative instead of merely reacting.
This will enable us to
circumvent faith-accomplis that other powers are trying to force on
us. We must express unequivocal collective views about all
international problems of importance.
(3)
We must accord to our mutual and collective solidarity a top
priority in our international dealings in all of the political, military and
economic domains....
We must achieve an inner boundless
cohesion and solidarity.
(4)
We must repel, jointly and resolutely, all attempt to interfere
in the domestic affairs of any non-aligned country.
(5)
We should not content ourselves with sterile decisions and
announcements as a substitute to real action?6
He also emphasized that this conference which lent special emphasis upon
solidarity and joint action entailed the following:
25
The Hindustan Times, 17 August 1976.
26
Sadat's address to the Colombo Non-Aligned Movement Summit, MENfl..
Cairo, 16 August 1976, quoted in Raphael Israeli, The Public Diary of
President Sadat, Part Ill, The Road to Pragmatism, Leiden: E.J. Brill, 1979.
pp.1358-1360.
150
(1)
We should plan the development of our economy so as to conform
to the principles of our collective self-sufficiency, which is the best guarantee for
the undoing of foreign influence and pressures.
(2)
We must lend foremost priority to our economic and trade
cooperation and to achieve a growing amount of economic integration and
cooperation. 27
In fact the economic resolution of this conference was co-
sponsored by Egypt, Cuba, India, Guyana, Indonesia, Vietnam, Tunisia and
Yugoslavia.
It recalled the relevant provisions of the action programme for
economic cooperation adopted by the Fourth NAM Summit. The resolution said
that the members were strongly convinced of the need to set up a co-ordination
council of non-aligned countries at government level for devising measures for
cooperation and coordination of NAM countries. 28 The Summit, in which Egypt
participated actively at a group level, reached the unanimous conclusion that the
process of decolonisation had enforced its final and most decisive phase and
hailed the growing struggle of the people of Zimbabwe, Namibia, South Africa,
Palestine and other dependent territories. 29 The Colombo NAM Summit of 1976
welcomed, with satisfaction, "the successful struggle against Zionism and the
27
ibid, p.1361.
28
Ceylon Daily News, 24 August 1976.
29
Slobodan Lukic, The Non-Aligned Movement and National Emancipation,
Beograd: STP Socialist Thought and Practice, 1979, p.26.
151
striking demonstration of the capacity for struggle of the Arab people in their
liberation war of October 1973 against Israeli forces of aggression. "30
The Sixth Summit of Heads of State and Government of non-aligned
countries was held in Havana, Cuba, from 3 to 9 September 1979.
The
representatives of ninety-two members of the NAM met. Fifty-four heads of state,
twenty national liberation movements, states and organisations and eighteen
states and organisations with guest status attended the conference.
31
Boutros
Ghali, the Minister of State for Foreign Affairs of Egypt, represented Egypt in this
NAM Summit.
In addition to the general problems faced by the non-aligned
countries, the Summit took up some other controversies. Egypt's continued non9ligned status, the Algeria-backed liberation struggle by Polisario in Western
Sahara against Morocco supported by the U.S. and Egypt, oil prices for the
poorer developing countries and of course the Kampuchean issue were some of
them.
32
The ensuing debate on non-alignment, and on the Middle East was a
continuation of the debate started at the two immediately previous meetings, in
Algiers in 1973 and Colombo in 1976.
However, this time some new and
significant variations were added to the stanqard rhetoric. With the NAM tilting
towards the Soviet Union under Castro's guidance, the Middle East issues at the
30
D.R.Goyal and S.Bhutani, Non-alignment and the Palestinian Question,
New Delhi: League of Arab States Mission, 1985, p.124.
31
Addresses, Six NAM Summit, 1979, p.881.
32
Amrit Bazar Patrika, 4 September 1979.
sixth Summit were now judged within the context of US-USSR rivalry rather than
from the perspective of a neutral Third World. 33
By mid-day on the extended day of the Sixth non-aligned Summit broad
agreements had been reached on most of the divisive issues that had dominated
the meet but the controversial Arab move to suspend Egypt from the movement
had still to be disposed of. The main point of dispute was whether the Summit
should condemn the Camp David Accords and the parties by name or should
merely disapprove of "partial solutions". While the Arab group with the backing
of the radicals had been pushing for strong condemnation and the naming of the
parties including the United States, the African bloc had been opposed to
condemning the Camp David Agreements and the parties by name. Replying to
Premier Castro's denunciation of Egypt's "treasonous action", Boutros Ghali
declared: "It is because Sadat is an authentic revolutionary that he went to
Jerusalem to liberate Palestine. We are the only Arab power fighting to liberate
Palestine. One does not have to agree with our procedure, but one cannot say
that we have become the gendarme of American imperialism". 34
Egypt fought back forcefully against its critics describing its treaty with
Israel as a non-aligned victory.
Egypt's Minister of State for Foreign Affairs,
Boutros Ghali, told the Summit's plenary session that he would like to stretch out
his hand to the Palestine Liberation Organization (PLO), one of Egypt's most
33
Benjamin Rivlin, "Middle East Issues at the Havana Non-Aligned Summit",
Middle East Review (New York), vol.12, no.2, Winter 1979/80, pp.40-44.
34
Quoted in ibid, pp.40-44, originally written in Le Monde, 5 September 1979.
153
severe critics over the peace treaty, and pledged that Egypt would struggle until
the creation of a Palestinian state. 35 Ghali expounded:
President Sadat's initiative of proposing peace and justice to the
enemy in November 1977 was a truly revolutionary action that is in
the purest militant, progressive, Third World traditions of the
movement of non-aligned countries, in spite of all the allegations,
accusations and lucubrations by certain parties. This historic
initiative, that we support and will continue to support with
determination and strength, leads, has always led and will continue
to lead to the establishment of peace in our territories and a search
for a peaceful solution to the Palestinian problem, in accordance
with the desires of the Palestinian people -the victims of oppression
exercised not only by their enemies but also, it must be said, by
some of our Arab brothers. By signing a peace treaty with Israel,
Egypt has recovered all its territories that were occupied by the
enemy and has re-established its territorial integrity.
This is
doubtless an Arab victory, an African victory and a non-aligned
victory, of which we should all be proud. By signing another treaty
at the same time, Egypt obtained an agreement in principle for the
evacuation of Israeli troops from the West Bank and the Gaza Strip
and for the Palestinians' right to establish their own Provisional
Government, that will negotiate with the Israelis to determine the
definitive status of their homeland. It is the Palestinians and they
alone who should determine their future. Neither Egypt nor any
other Arab state can pretend to speak on behalf of the Palestinians.
Here, during the Sixth Summit conference, in Havana, before this
august assembly, before all of you, I offer my hand in friendship to
the Palestine Liberation Org~nization (PLO). I reaffirm Egypt's
solemn and militant commitment to continue to struggle for our
Palestinian brothers until a Palestinian state has been created.
Together, we will be able to oppose the expansionist and colonialist
desires of the state of Israel. Together, we will be able to force
Israel to renounce its attacks, that the world condemns. Together,
within the framework of this Movement, we will be able to win. 36
The non-aligned Summit, throughout rocked by the intra-Arab controversy
over Egypt's action in making peace with Israel separately and by the thorny
problem of Kampuchean representation, ended on 9 September 1979 after putting
35
The Hindu (Madras), 9 September 1979.
36
Addresses, Six NAM Summit, 1979, pp.190-91.
154
off decisions on both issues. On Kampuchean issue the conference decided to
refer the question of the representation of Kampuchea to the Co-ordinating
Bureau, which would act as an ad hoc committee; to continue analysing this
question; and to submit a report to a subsequent ministerial conference. 37
At the end of the all-night session the Summit decided to condemn the
Camp David Agreement between Egypt and Israel and the partial agreements
reached by them but shelved, until1981, the persistent demand by hard line Arab
states for the suspension of Egypt from the movement.
The approved resolution which angered Egypt, was on the recommendation
of a twenty-two member Summit steering committee presided over by President
Castro.
Ghali referred to a "brutal minority" which dreamt of putting the
movement under its trusteeship - seen as a reference to the Cuban-led radicals
in the organisation.
Ghali defended his government's action and assailed his
Arab critics by saying:
''Your hands are full of blood and you are trying to wipe
the blood off on Egypt's back. Our hands are clean. "38
However the conference, in its resolution no.2 on the question of Palestine,
reaffirmed its recognition of the inalienable rights of the Palestinian people
including (a) the right of Palestinians to return to their homes and property from
which they were expelled (b) the right of self-determination without external
interference, and (c) the right to establish an independent sovereign state in
Palestine, condemned energetically all the partial agreements and separate
37
ibid, p.885.
38
Asian Recorder, 8-14 October 1979, p.15118.
155
treaties which constitute a flagrant violation of the rights of the Arab nation and
of the Palestinian people, the principles of the charters of the Organisation of
African Unity (O.A.U.) and the United Nations and the resolutions adopted in
different international forums on the question of Palestine, which impede the
aspirations of the Palestinian people to return to their homeland, to achieve selfdetermination and to exercise full sovereignty over their territories.
Bearing in mind that the Camp David Agreements and the Egypt-Israel
Treaty of 26 March 1979 constitute a partial agreement and a separate treaty that
means total abandonment of the cause of the Arab countries and an act of
complicity with the sustained occupation of the Arab territories and violate the
inalienable rights of the people of Palestine, to condemn the Camp David
Agreements and the Treaty between Egypt and Israel.
Within this context, the Heads of State or Government considered the
proposal that the Government of Egypt be suspended as a member of the
movement of non-aligned countries for having violated its principles and
resolutions. The conference decided to entrust the Co-ordinating Bureau, acting
as an ad hoc committee, with the examination of the damage caused to the Arab
countries, particularly the Palestinian Arab people, by the conduct of the Egyptian
Government in signing the Camp David Agreements and the Egyptian-Israeli
Separate Peace Treaty. The ad hoc committee will report on this matter to the
Ministerial Conference to be held in New Delhi which will take a decision
regarding the status of Egypt in the movement. 39
39
NAM Documents, 1961-82, pp.460-61.
156
The proposed meeting of non-aligned foreign ministers of 1981, scheduled
to be held in New Delhi, was authorized to decide the suspension issue aided by
an ad hoc committee.
The expanded co-ordinating bureau (of which India was a member) would
act as the ad hoc committee and examine "the damage caused to Arab countries,
particularly the Arab people of Palestine, by the behaviour of the Egyptian
Government after signing the Camp David and the separate peace treaty with
Israel. The ad hoc committee would send its report to the New Delhi meeting,
which will decide the "status" of Egypt in the movement, Egypt is a founder
member of the NAM.
Ghali, defending continuously his Government's action in concluding a
peace treaty with Israel, said in this important conference that there was no
consensus behind the formula adopted by the Summit.
He said, twenty-six
countries had supported Egypt. 40
The Summit's decision on the issue of suspension of Egypt followed an
accord reached earlier in the 25.-member conference bureau. The agreement was
based on a resolution which itself was the result of an agreement between the
African bloc and the Arabs. The African group was opposed to condemning the
Camp David Accords and the Peace Treaty by mentioning the countries involved
by name and insisted on following the recent Organisation of African Unity
Declaration adopted in Monrovia which condemned partial settlements but it
relented.
40
The Hindu, 10 September 1979.
157
Yugoslavia which had been defending Egypt all along did not also put up
a fight. It was left to India to tone down the resolution and go to the aid of Egypt,
which it did, despite the reaction of the radical Arabs who supply oil. The Minister
of External Affairs of India, Mr.S.N.Mishra, who participated in the bureau
meeting, raised India's voice of opposition to the suspe.nsion move and suggested
some amendments, most of which were accepted. He candidly conveyed that the
main issue was rather the intransigence of Israel which was the villain of the piece
and nothing should be done to divert attention away from this aspect. The EgyptIsraeli Treaty could not be condemned totally as some parts of it benefited the
people of Egypt
Mr.Mishra, therefore, urged that the bureau tone down the
language and substitute "cannot condone" for "condemn". This was not, however,
acceptable to the Arabs
~nd
the radicals who insisted on a strong condemnation.
Another suggestion made by Mishra was that the issue of suspension be referred
to the Co-ordinating Bureau rather than to an ad-hoc committee. The difference
would be technical but the bureau had clearly laid down procedures and any
number could attend its meetings. The conference bureau finally decided that the
issue could be referred to the Co-ordinating Bureau functioning as an ad hoc
committee and also agreed to give Egypt the right to defend itself. Mr.Mishra said
that India did not favour suspension but could not object to the matter being
discussed in the Co-ordinating Bureau.
The Bureau would only examine the
question and not take any decision. It would report to the New Delhi Ministerial
Conference to be held in 1981 and the prospect of Egypt being suspended was
158
remote. 41 It should be noted here that Prime Minister Morarji Desai of India had
earlier (on 2 June 1979) said that whatever be the disagreements between Egypt
and the Arab countries there was no provision to remove Egypt from the NAM so
long as it fulfilled the conditions of membership. One might or might not agree
with, what Egypt had done, but as long as Egypt did not violate the conditions of
membership of the NAM no action could be taken against it. 42
What was important of this Havana NAM Summit was that India played a
crucial role to save Egypt and "India and Yugoslavia re-wrote the Cuban draft to
make it more acceptable to the majority. "43 The role of Egypt in this conference
was to support the non-aligned issues and to cooperate with non-aligned
countries at group level to save the NAM. As its own survival was at stake, it
could not propose major solutions in this conference at the individual level as it
did during the previous conferences. It is pertinent to note here that the Sixth
NAM Summit portrayed the intra-NAM conflicts. President Castro, in his opening
address, strongly attacking what he described as US interference in the NAM,
alleged that a campaign had been mounted by 'Yankee Imperialists, their old and
new allies," firstly to prevent the holding of the conference in Havana (this having
been opposed by several countries including Egypt, notably at the Ministerial
Conference of the non-aligned countries in Belgrade in July 1978) and secondly
41
The Hindu, 10 September 1979.
42
Deccan Chronicle (Hyderabad), 2 June 1979.
43
Nagpur Times, 13 September 1979.
159
to obtain modifications in the Cuban draft of the final documents.
44
In fact, the
draft was heavily modified and rewritten by India and Yugoslavia.
Danger to the basic concept of non-alignment arose not only from Cuba's
attempt at ideological partisanship but also by the anger aroused against
Egypt. 45 This danger was averted by the vital role played by some of the NAM
countries like India. Egypt continued its cooperation hoping for the best in the
ministerial conference scheduled to be held in New Delhi in February 1981.
The 93-member non-aligned Foreign Ministers' Conference began at New
Delhi from 9-13 February 1981.
The speculation was that some of the
controversies inside the NAM and some of the non-aligned issues would be
solved. The stage for this conference was set by Mrs.lndira Gandhi, the then
Indian Premier. 46 Mrs. Gandhi opened the conference with a speech in which
she called for unity to be maintained within the NAM. However, the meeting was
marked by deep divisions, notably over the Soviet military intervention in
Afghanistan dating from December 1979 and Cuba's support for the Soviet Union
on this issue, which was regarded as endangering the "anti-bloc" commitment of
the movement.
The unity of the movement was further threatened by issues
which had already emerged at the September 1979 Havana Summit such as the
problem of Kampuchea and the proposed suspension of Egypt from the
movement and newer issues like the Iraq-Iran War. Moreover on 29 September
44
Keesing's Contemporary Archives; Record of World Events, 18 January
1980, p.30038; and Nagpur Times, 13 September 1979.
45
Tribune (Chandigarh), 11 September 1979.
46
National Herald, 9 February 1981; and The Statesman, 9 February 1981.
160
1980, it was reported from Cairo that President Sadat had suggested to Saudi
Arabia that a joint Egyptian-Saudi naval force should police the Persian Gulf and
that the President of Egypt had granted the United States permission to set up a
base at Ras Banas, on the Red Sea, opposite the Saudi Arabian coast, as a third
US base in Egypt, in addition to those west of Cairo and at Qena (400 miles
South of the capital). And on 2 November 1980, President Sadat said that th8
Treaty of Friendship between Syria and Soviet Union and the Iraq-Iran War were
signs of dangerous developments in the Middle East. 47
No progress was made on the Kampuchean issue, the Indian Government
having extended invitations neither to the Pol Pot regime deposed in January
1979 nor to the Soviet and Vietnam backed Heng Samrin Government, although
the ambassador of the latter government (newly accredited to New Delhi on 6
February 1981) was permitted to attend the inaugural session of the conference.
The final declaration called for the withdrawal of foreign forces from
Afghanistan and Kampuchea.
On the issue of the Middle East, the ministers
recalled paragraphs of 107 and 108 of the Declaration of Havana and declared
that the Camp David Agreements and the Egypt-Israel Treaty have no validity in
so far as they purport to determine the future of the Palestinian people and of the
Palestinian territories occupied by Israel since 1967. They condemned also any
initiative based on that approach or those agreements. They also condemned
any partial or separate solution and any agreement that would harm the rights of
the Arab countries and the Palestinian people, violate the principles and
47
Keesing's Contemporary Archives, Records of World Events, vol.27, 7
August 1981, p.31010.
161
resolutions of the movement of non-aligned countries and the United Nations
General Assembly or prevent the liberation of Jerusalem and the occupied
Palestinian and Arab territories and the attainment and full exercise by the
Palestinian people of their inalienable national rights. 48
But on the issue of
suspension of Egypt the conference again deferred the decision to the next nonaligned Summit which was to be held in New Delhi in March 1983 49
The New Delhi non-aligned Summit of March 1983 "endorsed and adopted"
the Fez Peace Plan recognizing Palestine Liberation Organisation (PLO) as the
sole and legitimate representative of the Palestinian people and guaranteeing
their right to return home to set up an independent sovereign state with Jerusalem
as its capital.
It rejected the Camp David Accords as inadequate. 50 But the
long-standing controversy over proposals for Egypt's suspension from the NAM,
which had been put forward in 1979 and had been reviewed and deferred by the
foreign ministers in 1981, had apparently diminished by late 1982, when President
Hosni Mubarak visited New Delhi on 1-2 December 1982. In February 1983, the
second conference of journalists from non-aligned countries was held in Cairo and
was attended by representatives of forty-five countries, including fourteen
members of the Arab League. 51
48
NAM Documents, 1961-82, pp.505-6.
49
Asian Recorder, 12-18 March 1981, p.15926.
50
Asian Recorder, 16-22 August 1983, p.17131.
51
Keesing's Contemporary Archives,· Record of World Events, vol.29 (1983),
no.8, Longman, p.32350.
162
After a Libyan call, in New Delhi NAM Summit on 8 March 1983, for the
expulsion or suspension of Egypt from the NAM until Egypt tore up its 1979 peace
treaty with Israel, President Mubarak addressed the Summit on the same day in
what was described as a speech marking Egypt's reintegration into the
movement. While in New Delhi, President Mubarak also had meetings with Iraqi,
Jordanian, Kuwaiti, Lebanese and Qatari leaders. Egypt's contacts were, thus,
apparently had been restored to some extent with all Arab countries except Libya
and Syria.
The assassination of President Sadat also seemed to reduce the
virulence of the attack by some Arab radicals.
President Mubarak was more
acceptable, especially after his reaction to Israeli military attack on Lebanon in
1982. In his speech President Mubarak called for resolution of the Palestinian
question by putting into motion proposals for replacing Israeli occupation of Gaza
and the West Bank by a Palestinian authority. 52
Thus, Sadat's period witnessed critical postures of Egypt in the NAM.
While pre-October War period was a period when Sadat pursued the trail blazed
by Nasser, the period of post-October War till 1978/1979 was
a
period when
Sadat followed ambiguous policies which got reflected in Egypt's policy in the
movement.
During the post-1979 period Sadat tried to recover the Egyptian
image of fallen-horse-man.
While this process of recovery was gaining
momentum, Sadat was assassinated and the Presidential mantle was soon
transferred to Hosni Mubarak who ventured to rectify the Sadati wrongs and get
back Egypt's international stature.
52
ibid, p.32353.
163
These developments in Egypt's policy in the NAM during that period are
easily explainable in the context of Egypt's domestic and foreign policies. The
Algiers NAM Summit of 1973 noted Sadat's critical comments of United States as
till this time Sadat was using USSR as a lever to get the help from USA, and the
October War of 1973 warranted the modest help of USSR. Sadat dropped his
Soviet option thereafter. Since 1974 Sad at had tried to compensate the Soviet
help with the help of United States. Sadat's perception of "U.S. effort that only
could solve the Arab-Israeli dispute", and his consideration, of "USA as a better
ally than the USSR" led him to come closer to the USA and the West vis-a-vis
Israel. In the process he challenged the Arabs, even traditional Arabs. A number
of Arab states pursue either an anti-US or an anti-Soviet policy but few of them
pursue an open "anti-Arab policy" as Sadat did. 53
He, thus, had to face the
consequences. Arabs not only laid down the final norms for the boycott of Egypt
by the Arabs in the ministerial council of the Arab League at its meeting in
Baghdad on 27 March 1979, but also tried hard to suspend Egypt from the NAM
as on the Havana Summit. Fortunately countries like India, Indonesia, Sri Lanka,
Yugoslavia as also several African states and some Arab states like Oman and
the Sudan saw to it that Egypt was not expelled from the NAM.
Thus, the policy of Egyptian non-alignment and Egyptian role in the NAM
became feeble in contrast to the earlier resolute position made under Nasser.
Thanks to the foundation laid by Nasser and the support base given to Sadat,
during his lean periods, by Organisation of African Unity, India and Yugoslavia
53
K. R.Singh, "Egyptian Non-alignment", International Studies, vol.20, no.1-2,
January-June 1981, p.335.
164
which not only neutralised the Egyptian opposition groups like Arab League and
Organisation of Islamic Conference (OIC}, and also Latin American countries like
Cuba but also rejuvenated Egyptian action in the NAM. Hosni Mubarak, who took
the rein, nonetheless, started playing a crucial role in revitalizing Egypt's lost
position.
165